Norman M. Giller & Associates v. United States

535 F.2d 37, 22 Cont. Cas. Fed. 80,290, 210 Ct. Cl. 80, 1976 U.S. Ct. Cl. LEXIS 7
CourtUnited States Court of Claims
DecidedMay 12, 1976
DocketNo. 224-74
StatusPublished
Cited by2 cases

This text of 535 F.2d 37 (Norman M. Giller & Associates v. United States) is published on Counsel Stack Legal Research, covering United States Court of Claims primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Norman M. Giller & Associates v. United States, 535 F.2d 37, 22 Cont. Cas. Fed. 80,290, 210 Ct. Cl. 80, 1976 U.S. Ct. Cl. LEXIS 7 (cc 1976).

Opinion

Dtjreee, Senior Judge,

delivered the opinion of the court:

This Wunderlich Act1 review case concerns the entitlement of a sole proprietor of a cost-plus-fixed-fee contractor and his spouse to constructive compensation for administra[82]*82tive services rendered in conjunction with a service contract,, -and first claimed after the termination of the contract.

Norman M. Giller & Associates, a professional architectural and engineering firm and a sole proprietorship owned ■and managed 'by Norman M. Giller individually, contracted ■on a cost-plus-fixed-fee basis with the Agency for International Development (AID) to provide various architectural and engineering services on several AID projects in the Republic of Panama. The contract provided that plaintiff would be reimbursed for its direct base salary costs •of its employees in both its Florida home office and its Panama field office in accordance with cost provisions appended to and expressly incorporated in the parties’ contract. Plaintiff’s indirect (overhead) costs were to be reimbursed at 35% of its Panama direct contract costs and "50% of its home office direct contract costs. The parties’ ■contract began in March 1962 with an estimated completion period of two years. Subsequent contract amendments extended the contract completion period to April 1966 with plaintiff’s final report on the project submitted in May 1967.

Following expiration of the contract, AID conducted a •final post-contract audit of plaintiff’s costs under the contract. From this audit, defendant computed the amounts due plaintiff under the contract for both its direct and indirect costs and reimbursed plaintiff the outstanding ¡amounts owing calculated pursuant to its final contract audit report.

Plaintiff protested defendant’s final audit calculations ■claiming additional indirect costs reimbursable under the ■contract in the amount of $247,583. Of this amount, plaintiff claimed $79,685 as contractually allowable but un-reimbursed overhead costs and $167,898 as constructive compensation for the administrative services performed by Mr. ■and Mrs. Giller for plaintiff during its performance of the ■contract. The claimed amounts had their genesis in a private professional audit of plaintiff’s contract performance commissioned following plaintiff’s dissatisfaction with the results of defendant’s final audit report, and the Contracting ■Officer’s refusal to make any adjustment in the Government’s final audit report.

[83]*83Plaintiff’s private accountants conducted a thorough and comprehensive audit of plaintiff’s contract performance. Concurrent with this audit, plaintiff’s accountants converted plaintiff’s books from a cash basis to an accrual basis. As part of their audit analysis, plaintiff’s accountants added as an indirect contract expense an amount as constructive compensation to the Gillers for their administrative services for plaintiff during its activity under the contract and project.

During plaintiff’s contract performance, Mr. Giller, as plaintiff’s sole proprietor, drew no salary for his efforts on behalf of the firm. Mr. Giller performed largely administrative functions and ran the firm as opposed to doing actual professional architectural or engineering work. Mr. Giller did charge defendant for the small amount of engineering work he did perform on the cohtract. Mrs. Giller performed office “administrative work” and ran the firm in Mr. Giller’s absence. Mrs. Giller drew no salary for the performance of these duties during the life of the contract. Plaintiff’s books carried no entries for compensation to the Gillers for administrative work performed on behalf of the firm.

On presentation of plaintiff’s private auditors’ report, and the testimony of plaintiff’s accountant to the Armed Services Board of Contract Appeals (Board) as part of plaintiff’s appeal from the Contracting Officer’s refusal to make adjustments to the Government’s final audit report, the Board allowed plaintiff’s claim for $79,685 in unreimbursed indirect contract costs. The Board denied, as an imaginary expense, plaintiff’s claim for constructive compensation for the Gil-lers’ performance of administrative services during the parties’ contract. The Board concluded that “* * * the constructive compensation is unallowable as representing nothing actually paid, nor any company obligation charged or incurred.” 73-1 BCA ¶10,016 p. 47,014.

In this action, plaintiff appeals the Board’s denial of its constructive compensation claim. Originally, defendant sought to counterclaim for recovery of the $79,685 awarded plaintiff by the Board. After review of the administrative record, defendant retreated from this position and presently bases its defense solely on the validity of the Board’s deter[84]*84mination denying plaintiff’s constructive compensation claim.

In their respective motions for summary judgment neither party disputes the Board’s factual determinations which have been summarized above from the Board’s reported decision. Norman M. Giller & Associates, ASBCA No. 14696, 73-1 BCA ¶ 10,016. Thus the sole issue before the court is the legal validity of the Board’s denial of plaintiff’s constructive compensation claim. For the reasons set forth below the Board’s, decision is sustained and defendant’s summary judgment motion granted..

As its lead argument that the Board erred in denying plaintiff’s constructive compensation claim, plaintiff contends, that the Gillers should be compensated for their administrative services on commonsense principles relating to sole pro-prietorships because there is no sound business accounting-method by which Norman M. Giller & Associates could have paid its sole proprietor, Norman M. Giller, a salary. This argument rests on the false assertion that a “sole proprietor-cannot pay himself a salary.” (Pltf’s brief p. 14). This argument for which plaintiff tellingly provides no authority is-both contrary to the decisions of the Board from whence-plaintiff appeals and the Cost Principles applicable to plaintiff’s contract.

In Howard F. W. Taylor, ASBCA No. 2876, 57-1 BCA ¶ 1204, the Armed Services Board of Contract Appeals allowed a proprietor’s claim to a regularly collected appropriate salary as a general and administrative expense of the-proprietorship’s contract. Further, the Cost Principles applicable to P’s contract provided that subject to certain restrictions salary amounts may be reimbursed to sole proprietors..

In determining whether plaintiff’s constructive compensation claim is allowable, and the Board erred in denying the* claim, it is the parties’ contract rather than any commonsense principles of proprietorships which governs. Under-the parties’ contract defendant agreed to reimburse plaintiff for its direct contract performance costs determined in-, accordance with the contract’s Cost Provisions. Defendant agreed to reimburse plaintiff for the indirect contract performance costs on a percentage basis of its direct costs. The-[85]*85parties’ contract sets forth defendant’s reimbursement obligation of plaintiff’s indirect contract costs as follows:

II — Indirect U.S. Dollar Cost's

(a) Except as otherwise provided in Article III (a), indirect costs (overhead) allocable to the contract, shall be reimbursed periodically in amounts equal to the provisional percentages as set forth in Article III (a) of direct U.S.

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Bluebook (online)
535 F.2d 37, 22 Cont. Cas. Fed. 80,290, 210 Ct. Cl. 80, 1976 U.S. Ct. Cl. LEXIS 7, Counsel Stack Legal Research, https://law.counselstack.com/opinion/norman-m-giller-associates-v-united-states-cc-1976.